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Climate-smart disaster risk reduction
for the 21st century
The Pledge Project
2008–11 | Colombia, Ethiopia, Indonesia
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Climate-smart disaster risk reduction for the 21st century
THE PLEDGE PROJECT Overview
The Hague, Netherlands
The Netherlands Pledge Project was born in 2007. At its core was
a pledge to assist National Societies in three countries suffering
climatic impacts – Colombia, Ethiopia and Indonesia – to combine
disaster risk reduction with climate change adaptation. Its educational
component included life-size board games (picture).
Tropic of Cancer
Equator
Magdalena and (picture
(picture)
La Guajira departments,
Colombia
(See
See page 4
4)
Activities include:
• Early-warning
systems and flood
gauges
• Village health-posts
• Relocation
(coastal erosion)
• Drinking-water
storage
• Disaster-response
supplies
• Red Cross
capacity-building
Tropic of Capricorn
• Community and
school training*
*All Pledge Project training programmes included climate impacts and DRR.
Cover photo: Mamey Trekegn (centre) plays with friends near the small factory in Ebinat,
Ethiopia, where local women manufactured fuel-efficient stoves for their own use and for
sale as part of the NLRC Pledge Project. (Photo: Raymond Rutting/NLRC)
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Climate-smart disaster risk reduction for the 21st century
FOREWORD
by Juriaan Lahr
E LIVE in a world where climate-related
disasters – hurricanes, floods, droughts –
are increasing dramatically, and the poorest people in the poorest countries suffer most.
These are natural phenomena, of course, even
though vulnerability is often man-made, and while
it will never be possible to prevent them completely,
we can reduce their negative impact on people’s lives
with Disaster Risk Reduction (DRR) work.
W
The Red Cross Red Crescent globally had extensive
experience in community-based DRR before we at
the Netherlands Red Cross (NLRC) started the
Pledge Project – a joint programme supported by the
Netherlands government that ran from 2008 to
2011. Conceived in November 2007 at the 30th International Conference of the Red Cross and Red
Crescent, the core of the programme was a pledge to
assist our National Society colleagues in three countries suffering climatic impacts – Colombia, Ethiopia and Indonesia – to combine DRR with what is
now known as Climate Change Adaptation (CCA).
It’s impossible to take a single flood or drought and
say: “Climate change is to blame.” But we know the
climate is changing, in part due to human influences. And what matters most to us is that disaster risks
are rising, not only due to changes in weather extremes, but also population growth, urbanization
and other factors.
To help people most affected by disasters, the Pledge
Project wanted to achieve three objectives that are
encapsulated in the words knowledge, action and capacity. Knowledge means people learn about climate
change and variability and their impact on human
well-being. This includes knowledge of long-term
climate trends and phenomena such as El Niño and
La Niña. It’s important because if, for example, Indonesian villagers know that storm surges are likely
to increase in frequency and intensity, they may not
cut down protective vegetation for fuel or sale.
Action means communities develop the skills and the
capacities needed to confront disaster, especially
when hazards are related to climate. A Colombian
village that often experiences floods will need a contingency plan and systems that warn people when to
evacuate.
Finally, building capacity means National Societies
will learn how to mobilize communities and other
stakeholders to address climate-related disaster risk.
In Ethiopia, the Red Cross effectively mobilized
communities through the innovative use of audiovisual material and worked hand in hand with the
local authorities to implement Pledge activities.
The Netherlands government and Red Cross saw
Pledge as a pilot from which we hoped to learn valuable lessons about the reduction of climate-related
disaster risk. These lessons may help a wider group
of actors within the Red Cross Red Crescent Movement as a whole, the Red Cross Red Crescent Climate Centre (based in The Hague), the DRR and
CCA community, and other humanitarian and development agencies.
Pledge partnerships: the NLRC’s Eva Goes and Dawit Daricha of the Ethiopian Red Cross discuss
Pledge at a conference in The Hague in 2009 as the project passed its halfway mark. (Photo: NLRC)
3
Juriaan Lahr, Head of International Assistance,
Netherlands Red Cross
Climate-smart disaster risk reduction for the 21st century
The Pledge countries:
what disaster risks are
they facing?
olombia, Ethiopia and Indonesia all lie
around the same latitude and share some climatic characteristics, such as relatively high
temperatures during the entire year. Nevertheless,
there are also important differences in the specific
disaster risks each faces.
C
Colombia is generally tropical but because of its size
and geography, weather conditions vary considerably. In the coastal areas and the eastern Andes
mountains, hurricanes and intense rainfall during
La Niña events regularly cause flooding and landslides, with often disastrous consequences. The
north-western town of Lloró, for example, holds the
world record for the most rain in a year – a scarcely
credible 13,300 mm, according to the US National
Climatic Data Centre. Because of large-scale migration to coastal areas, the human impact of catastrophic rainfall has increased over the years.
At the other climatic extreme, some areas of Colombia periodically experience severe drought. During
El Niños, many places suffer from a shortage of
rainfall. Due to these droughts about 3.6 million
hectares (8 per cent of the country’s surface area)
face desertification. On the Caribbean coast, erosion
and rising sea-levels are exacerbating the impact of
mar de levas or sea surges.
In Ethiopia drought is an even more devastating and
frequent occurrence. Because two-thirds of its forests have been destroyed fertile topsoil has been
eroded, meaning the land can hold less water. This
amplifies the impact of drought on people. At the
same time rainy seasons have become less predictable and more intense, causing dangerous flooding.
All this has made agriculture in Ethiopia extremely
difficult, which in turn leads to widespread hunger.
At the time of writing, more than 3 million people
were still being listed for food aid.
Indonesia has a stable tropical climate with a
main rainy season that runs from October through
March. Due to the amount of rain, floods and landslides are regular occurrences in the island nation.
Because of rising sea levels, about 4,000 smaller
islands run the risk of disappearing altogether
under the waves.
The seismic risk in Indonesia is also very considerable, as became tragically clear in the 2004 Indian
Ocean tsunami which killed more than 160,000 Indonesians. The country forms part of the Pacific
“Ring of Fire”, which means that earthquakes and
volcanic eruptions occur regularly. Between 2003
and 2005 alone, there were a total of 1,429 seismic
incidents.
Which activities took place
where in Pledge?
Colombia
Riohacha
Santa Marta
LA GUAJIRA
Baranquilla
Ciénaga
Grande
de Santa
Marta
MAGDALENA
Villanueva
four floods a year,” says Red Cross Magdalena coordinator Francisco Garcia. “Now the number has risen to 15, and the water lingers for days.” Intense
heatwaves threaten people already in poor health.
he Netherlands Red Cross supported activities
in the two northern Colombian coastal departments of Magdalena and La Guajira, helping
communities face climate-related hazards and reduce disaster risk. These areas are very dry and hot,
with average temperatures as high as 35 degrees Celsius and a yearly average rainfall of 450 mm. Because of the heat, every year about 1,500 mm of
moisture evaporates from the soil.
Members of these communities are even more vulnerable because of the high level of poverty: almost
80 per cent of inhabitants live below the poverty line
of US$ 1.25 a day.
Sea surges and rapid erosion of the dry coast put people in ever-increasing danger of disastrous flooding.
“The communities here used to experience three or
In La Guajira, the indigenous Wayuu village of San
Tropel suffered so much coastal erosion that it was
necessary to move the entire community to new
T
4
Climate-smart disaster risk reduction for the 21st century
homes a short distance inland (see below, Pledge People). In cooperation with the Colombian Red Cross
(CRC), the Chevron oil company and local authorities, 20 new homes – in effect a new San Tropel –
were constructed. At the same time, the villagers attended training sessions and workshops about
climate change and variability, and planning for
emergencies. These efforts are examples of how
knowledge, action and organizational capacity can
all be developed at the same time.
In another community in La Guajira, Villanueva, an
early-warning system was designed and constructed
(see photo below). A tube with a small buoy inside is
placed in a river which sometimes floods. When the
water rises to a dangerous level, the buoy floating inside the tube closes an electrical circuit which sets off
an alarm through sirens mounted high up on a post.
“So now, when the alarm goes off, everyone knows
what to do when the water level of the river is rising
dangerously,” says Juan Contreras, president of the
local residents’ junta (committee) in Barrio del Rio,
the village nearest the actual sirens. “Immediate action is taken by various organizations such as the
Red Cross, fi re service, police, army – everyone acts
to help the community.”
In Magdalena before Pledge, many villagers living
along the very narrow isthmus linking the cities of
Santa Marta and Baranquilla, with the Caribbean to
5
the north and the Ciénaga Grande de Santa Marta –
a shallow inland sea – to the south, depended on water tanks dug into the ground that were often flooded, and hence contaminated, in the rainy season. As
part of Pledge 250 new Colempaques tanks were in-
‘Nowadays we can
drink from the water tank
with confidence’
stalled by CRC volunteers. They are designed to
block algae and bacteria and sealed against the elements. “Nowadays we can drink from the water
tank with confidence,” said one villager. “It’s drinking water and it’s good for my kids and my family.”
Other Pledge risk-reduction activities included early-warning procedures and contingency plans for
evacuation, sea-level and rainwater gauges, and
awareness-raising about climate impacts such as the
coastal erosion and rising sea-levels.
The NLRC learned a great deal from the Pledge experience in Colombia. The relocation of an entire
village in La Guajira to protect the community from
coastal erosion and rising sea levels had never been
done before. In Magdalena the input of villagers
provided a priceless lesson on how to link immediate
problems like hunger with climate change and variability. All these learning processes will inform and
improve future projects with climate-related DRR.
Jose Zuniga, head of early warning with the Colombian Red Cross in La Guajira department, checks a river-level gauge outside
Villanueva, in the mountainous south of the department – part of a system installed by the Red Cross during the NLRC Pledge Project.
The gauge triggers powerful sirens that gives people in the town below about ten minutes’ warning of approaching flash-floods; it has
gone off five times since it was first installed. There may be no other warning of the potentially lethal floods since there can be torrential
rain in the mountains above Villanueva while skies are completely clear below. (Photo: NLRC)
Climate-smart disaster risk reduction for the 21st century
Ethiopia
Gondar
3HRL°
Tana
Addis Zemen
Bahir Dar
AMHARA REGION
SOMALI REGION
Dire Dawa
ins
ounta
ar M
Ahm
OROMIA REGION
Harar
he greatest hazard people facing people in Ethiopia is drought, followed by periodic river
floods. In Pledge the Netherlands Red Cross
supported the Ethiopian Red Cross (ERC) and local
government in developing activities in the woredas
(districts) of Goro-Gutu and Ebinat in the centre
and north of the country. These are both regions
where a lot of trees have been cut down, leading to
soil erosion. Said one farmer who lives at the project
site: “Deforestation has increased and drought has
become more frequent and destroyed the pasture.”
T
“After the initial training we gathered under one roof
as a community and discussed what we can do and
accepted the ideas of the Red Cross,” according to
another. “Then we identified a project site and went
to the mountain to begin the terracing. We observed
that terracing stops flooding and conserves soil.
“We made many small crescent-shaped dykes and
planted seedlings under them. The water that flows
downhill is also stopped by the new check-dams. As
a result of the Red Cross project, wild animals have
begun to return to the area.”
Due to climate change and variability, the little
rainfall that does occur comes in increasingly unpredictable patterns. This makes it almost impossible
for farmers to anticipate rain; they say they used to
get enough, but for five years at least seasonal rains
have been late or inadequate. The soil has lost more
and more fertility, and this in turn reduced yields in
a society where the overwhelming majority of the
population depend on subsistence agriculture to sur-
vive. Some people the Red Cross workers met said
simply they are not sure where their food will come
from “for half the year”.
To reduce this chronic food insecurity under Pledge
the Red Cross (NLRC and ERC together) and the
local government developed mainly agricultural activities like small-scale irrigation, “check-dams”, and
terracing in three kebeles (villages): Medisa-Jalala
‘As a result of the Red Cross
project, wild animals
have begun to return’
and Yeka-Aman in Goro-Gutu, in the Ahmar
mountains east of Addis Ababa, and Wagi-Wergaja
in Ebinat, near the northern city of Bahir Dar. The
Ethiopian government supplied technical input on
natural-resource management and seeds.
Because cutting down trees for fi rewood is one of
the main causes of deforestation, local women were
taught how to manufacture fuel-saving stoves (see
below, Pledge people) that are three times as energyefficient as the traditional alternative.
Knowledge about climate-related disasters and their
impacts was increased among the villagers through
several activities. For example, videos of farmers
from other parts of Ethiopia who had already implemented CCA measures were shown to farmers in
Ebinat. Being able to identify with the people in the
videos made the Ebinat farmers very enthusiastic
and receptive to ideas for climate-related DRR.
Ethiopian villagers construct
hillside terraces as part of the
Pledge Project. The country is
suffering a cycle of drought-flooddrought – rain often comes in
short but damaging bursts, and
people in the countryside have
little choice but to cut down trees
and shrubs for fuel, further
exacerbating the problem of
conserving topsoil. Pledge
Project interventions in Ethiopia
were mainly agricultural, focusing
on small-scale conservation and
irrigation. Women were also
taught how to manufacture
fuel-efficient stoves for their own
use and for sale. (Photo: NLRC)
6
Climate-smart disaster risk reduction for the 21st century
Indonesia
he Indonesian population faces almost every
disaster risk imaginable: floods, droughts,
earthquakes, volcanic eruptions and landslides.
Floods and landslides are the most prevalent, respectively making up 34 and 16 per cent of the total disaster burden. Floods can be especially damaging because of coastal erosion which destroys natural
defences.
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The El Niño phenomenon has been making floods
and droughts more frequent and severe over the past
few decades. When Pacific Ocean currents are unusually warm – El Niño – this causes droughts; El
Niño accounts for over 80 per cent of Indonesia’s
droughts.
skills and capacities of community members and the
Indonesian Red Cross. An important example of
these activities is the training of Community Based
Action Teams (CBAT), which take a lead role in reducing the risk of climate-related disasters. In total
180 community members were trained.
The experience has also been very educational for the
Netherlands Red Cross. One important lesson was
that knowledge and capacity building of local community members and Red Cross branches in this
area is absolutely vital. With the Pledge Project an
important first step in this direction has been taken.
Pledge Project PMI
plantsman Ferdi Mboy
with his saplings in
Reroroja, Flores. Seven
sites at the foot of
potentially unstable
slopes were planted as
part of Pledge. Mboy is
an experienced
horticulturalist and
member of the local
CBAT. (Photo: NLRC)
On the other hand, when the currents of the Pacific
ocean are unusually cold – La Niña – more floods
occur. The trend of both more extreme rainfall and
drought is expected to intensify.
Pledge aimed to reduce the risk posed by these natural hazards to local communities in the province of
Nusa Tenggara Timur. These villages were involved:
Reroroja, Umauta and Nangahale on the island of
Flores, and Morba, Alila and Adang on Alor island.
Most of the villagers were farmers or fi shermen and
have little income; unemployment is widespread.
From December to April, many floods occur on the
islands which damage arable land and crops. Abdul
Mutalib, an Indonesian Red Cross (PMI)1 volunteer
in Nangahale village, Flores, says: “In the storm season we see the waves come up to the village, right
Community-Based Action Teams
take the lead in reducing the risk
of climate-related disaster
up to the school and past it.” The population also
suffers from frequent landslides and from diseases
such as malaria, dengue fever and diarrhoea which
were said to be less common before the seasons began to change.
The focus of the Pledge Project was on spreading
knowledge about climate change and increasing the
What did we learn?
n important goal for the Netherlands Red
Cross in the Pledge Project was to learn about
reducing disaster risks related to climate
change in different contexts. Over the course of three
years many different lessons were learned in each of
the countries. Here are the five most important.
A
1. Red Cross activities that address changing climate
risks need to be incorporated into existing disaster
management, health or other strategies and programmes. If climate change and variability make
floods more frequent in Colombia, for example,
rather than starting a separate climate change
(Continues on page 10)
1
7
The Red Cross is commonly known by its Indonesian acronym PMI, for
Palang Merah Indonesia.
Climate-smart disaster risk reduction for the 21st century
Pledge People
The fisherfolk of San Tropel
The indigenous Wayuu people of San Tropel, on Colombia’s Caribbean coast, knew they would have to leave
their village well before the waves actually engulfed
their homes. The sea had been advancing – and the
coast eroding – at the rate of about 20 metres a year;
the fate of San Tropel looked sealed.
capital, Riohacha, it was completed in September 2010.
The Wayuu villagers themselves provided most of the
labour and the CRC supervised the work.
“Being able to improve the conditions of life with our
own hands is something our community appreciates,”
said Victor Alarcon, a representative of the local mayor’s office and a key partner in the Pledge Project locally. “The people in this village are obviously very happy,
our lives changed, the problems with the coast solved,”
he adds. “We are very happy with this great revolution”.
It is difficult to overstate the seriousness of coastal erosion in this part of Colombia, which is also the most
northerly land on continental South America. The Chevron company, a key local donor which has a processing
plant nearby, puts large sandbags along the shore to
protect its own access road. It now has to replace them
every year and move personnel around by helicopter,
and it has rebuilt the jetty serving its plant.
Constructed specifically to address climate impacts,
San Tropel is the first settlement of its kind in Colombia
and one of the first anywhere in Latin America.
But the Colombian Red Cross was able to use Pledge
Project funds and donations from local donors to get
the village rebuilt some distance inland (picture, background), and safe from the waters for the next decade
or more. Thirty kilometres north of the departmental
The villagers continue to live by fishing and small arts
and crafts. According to a 1997 census, the Wayuu
numbered nearly 145,000, or 20 per cent of Colombia’s
total Amerindian population and 48 per cent of the population of La Guajira. The Wayuu have a long and unique
history: they were the only indigenous Colombians to
have mastered the use of horses and firearms and were
never conquered.
Pledge People
The stove-makers of Wagi-Wergaja
We’ve all had the experience of accidentally triggering
the smoke alarm in the kitchen by leaving something
under the grill a bit too long. But for women cooking on
open fires in the Ethiopian countryside, the problem of
smoke is much more serious; it’s believed to cause trachoma, for example, a bacterial eye infection.
“It’s hard to breathe when you cook with traditional
stoves and they use a lot of firewood,” explains Abebu
Damte, a Wagi-Wergaja mother of young children. “It’s
bad for babies’ eyes and we already have to walk very
far from the village to collect firewood.”
Pledge addressed this issue by helping the ERC introduce specially-designed, fuel-efficient concrete stoves
that work a little like pressure cookers, enclosing the
heat and greatly limiting the smoke from fires. They are
easily made locally from simple steel moulds, using one
part cement to three parts sand harvested from local
river banks.
With the finished stove, the cooking surface is placed
on a narrow tube made from four equal segments and
attached to an exhaust chamber. The stoves, which
were also intended to make a significant, if indirect,
8
Climate-smart disaster risk reduction for the 21st century
They are also far more efficient, using one third the fuel
of traditional stoves for the same output. “I can even
use fallen leaves in my stove,” says another Wagi-Wergaja mother, Azann Mekonnen. “The old stoves were so
dirty. Our clothes were always sooty.”
This Pledge work also involved an important livelihoodssupport component. Four women’s associations producing these ovens (picture) were established and together they have now made more than 400 for sale, at
the Ethiopian birr equivalent of about three euros.
(Photo: Justin Benn/Vivo Media)
contribution to reforestation, are set higher off the
ground, removing the need to bend over them and lean
into the smoke to cook. They are minor miracles of “appropriate technology” and perfectly suited to the African bush.
Pledge People
The hill farmers of Umauta
Umauta is actually the name of a cluster of four main
“sub-villages” on the south coast of Flores island:
Umauta, Wololora, Rohe and Wolonga (their population
together is 2,130).
cultivation or settlement has long since been taken.
They must either cut down trees on the slopes above
the village to increase the arable space available to
them, or face hunger.
People there face a very familiar dilemma in this part of
Indonesia: all the flat land that is truly suitable either for
Harvests are already patchy. “There’s never any surplus,” says Julita Moning (picture), 65, who is taking a
break from weeding her maize fields some 700 metres
above Umauta village.
“We live hand to mouth.”
In the Pledge Project a balance was struck by planting
the area around fields like Julita’s with a variety of saplings, including pala, mahoni, jati and rambutan trees.
The landslide danger in and around Umauta is also aggravated by the heavier rain people observe. Johanes
Moni, 62, and his wife Koletadua stand outside the rear
door of their home on the Umauta slopes. The house,
built on a terrace Johanes cut himself into the hillside,
backs onto an almost sheer drop. The earth face behind him crumbles and falls away when touched. Every
time a vehicle passes along the road above, he says,
“the land may slide”.
One of Umauta’s proudest possessions is an old cannon overlooking the sea below that was once used to repel tribal raiders; villagers say some European collectors recently tried to buy it but they declined to sell. Now
the NLRC hopes it has provided villagers with a more
up-to-date defence against a contemporary danger.
9
Climate-smart disaster risk reduction for the 21st century
unit, the existing disaster management department will address these new risks.
2. The Red Cross deals with extreme weather events
that happen on different timescales, from hours and
days to – with climate variability (El Niño and La
Niña) and change – months, years and decades.
As climate change is not linear or straightforward,
the best thing is to prepare now for managing the
risks we currently face, as well as those anticipated by forecasts on whatever timescales. CCA is
not just about preparing for the year 2100.
3. Forming working partnerships with meteorological
services, knowledge centres, local government
units, and the private sector is vital for a comprehensive answer to climate risk. In Colombia and
Indonesia, Pledge worked with meteorological
services to obtain important information and ex-
pertise. In Ethiopia, the project profited from cooperation with the local government through
technical and material inputs.
4. Effective awareness-raising at the community level is absolutely key to the success of the programme. In Colombia Red Cross volunteers used
games like puppet shows, dominoes and giant
snakes and ladders boards to teach people and especially children about disaster risk and climate
change. The benefits of all these excellent materials were seen in the enthusiasm and enhanced understanding of climate-related issues by the participants.
5. Integrating CCA and DRR is essential but takes
time and requires substantial capacity-building
efforts for Red Cross branches and other local
actors.
The Princess Margriet Fund
and ‘Partners For Resilience’
he Pledge Project was in many respects a pilot
project. Now that major lessons have been
learned, the next steps are already being taken
in several parts of the world. Two important examples are the work supported by the newly established
T
Princess Margriet Fund (PMF) and the Netherlands
based inter-agency alliance known as Partners for
Resilience (PFR).
Princess Margriet Francisca of the Netherlands (pictured left visiting the Bangladesh Red Crescent) has
been involved with the Red Cross since she became
a volunteer nurse during her student years. After
working on several projects she became the NLRC’s
vice-president in 1997 and has been closely involved
with the Red Cross/Red Crescent Climate Centre in
The Hague.
The fund established in her name aims to raise resources for disaster risk reduction implemented by
the Netherlands Red Cross worldwide, and projects
are now underway in 16 countries to help hundreds
of thousands of people at risk from climate-related
disasters (visit www.prinsesmargrietfonds.nl).
PFR, meanwhile, is another important initiative
linking DRR, CCA and ecosystem management
and restoration. It comprises CARE Nederland,
Cordaid, Wetlands International, the Red Cross/
Red Crescent Climate Centre, and the Netherlands
Red Cross (contact [email protected]).
With support from the Dutch Ministry of Foreign
Affairs, PFR works in nine countries worldwide to
strengthen the resilience of vulnerable communities
facing increased disaster risks, climate impacts and
environmental degradation.
10
Climate-smart disaster risk reduction for the 21st century
THE PLEDGE PROJECT Overview
Flores and Alor islands,
Nusa Tenggara Timur
province, Indonesia
Activities include:
• Riverbank flooddefences
• Protective forestry
• Disaster-response
drills
(See
See page 7
7)
• Government
advocacy
• Community
organization and
equipment
• Teacher and student
training
• Workshops on
resource mobilization
Tropic of Cancer
Ebinat (picture
(picture)) and
Goro-Gutu woredas,
Ethiopia
(See
See page 6)
6
Activities include:
Equator
• Agricultural
infrastructure
(irrigation, dams,
terracing, eye-brow
basins)
• Fuel-efficient stove
production
• Seeds and tools
• Renovation of natural
springs
• Early-warning systems
• Community training
• Participatory video
11
Tropic of Capricorn
Climate-smart
disaster risk reduction
for the 21st century
For more information on the NLRC Pledge Project,
please contact:
In The Hague
Bruno Haghebaert
[email protected]
For information on Partners for Resilience,
please contact:
[email protected]
You can also contact the
Red Cross Red Crescent Climate Centre:
[email protected]
The Netherlands
Red Cross